Russia's Withdrawal and NATO's CFE Treaty Ratification
The geopolitical landscape of the late 1990s was marked by complex negotiations regarding arms control and military presence in Eastern Europe. Central to these tensions was the Adapted CFE Treaty (Treaty on Conventional Armed Forces in Europe), a framework designed to limit the number of conventional military weapons and forces to prevent large-scale aggression.
Leading up to the 1999 Organization for Security and Co-operation in Europe (OSCE) Istanbul summit, NATO members raised critical concerns regarding Russian compliance with existing agreements. These concerns focused on three primary areas: excessive equipment holdings in the "flank" region, an unauthorized military presence in Georgia, and a lack of explicit consent from Moldovan authorities regarding Russian troops on their soil.
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The Istanbul Commitments
To resolve these disputes, 30 OSCE member states, including Russia and all NATO members, signed the adapted CFE treaty during the summit. This agreement established a set of obligations known as the Istanbul Commitments, which were detailed in the 1999 Istanbul Summit Declaration and 14 accompanying Annexes.
Under these commitments, Russia agreed to several key actions:
- Complete the withdrawal of forces from the Republic of Moldova.
- Reduce equipment levels in Georgia and coordinate the duration and modalities of its presence with Georgian authorities.
- Reduce military forces in the flank regions to the levels mandated by the Adapted CFE Treaty.
Challenges in Implementation
While some progress was made, the implementation of the Istanbul Commitments became a point of contention. In Moldova, the Summit Declaration explicitly welcomed Russia's commitment to complete its withdrawal by the end of 2002. However, since 2002, Russia has denied making a clear commitment to fully withdraw, despite having removed 58 trainloads of equipment and ammunition from Transdniestria (a breakaway region of Moldova). No further withdrawals have taken place since 2004.
In Georgia, Russia argued it fulfilled its obligations by agreeing to close the Batumi and Akhalkalaki bases and withdraw troops by the end of 2008. However, NATO members maintain that the treaty cannot be ratified until all troops are withdrawn, including those at the Gudauta base in Abkhazia. Abkhazia is a de facto independent breakaway republic that remains within the internationally recognized borders of Georgia, where residents voted for de jure independence in 2002 and 2006 referendums.
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Key Facts
- The Istanbul Commitments: A set of agreements signed by 30 OSCE states in 1999 to address Russian military presence in Georgia, Moldova, and the flank regions.
- Moldova Deadline: Russia was expected to complete its withdrawal from Moldova by the end of 2002.
- Partial Withdrawal: Russia removed 58 trainloads of equipment from Transdniestria, but withdrawals ceased after 2004.
- Georgian Bases: Russia closed the Batumi and Akhalkalaki bases by 2008, but the Gudauta base in Abkhazia remains a point of dispute.
- Ratification Status: NATO members refuse to ratify the adapted CFE treaty until all Russian troops are withdrawn from Georgia and Moldova.
Summary of Russian Military Commitments
| Region | Commitment | Status/Outcome |
|---|---|---|
| Moldova | Complete withdrawal by end of 2002 | Partial (58 trainloads removed); stalled since 2004 |
| Georgia | Reduce equipment and agree on force modalities | Batumi and Akhalkalaki closed by 2008; Gudauta base remains |
| Flank Region | Reduce equipment to agreed treaty limits | Agreed upon in the Adapted CFE Treaty |
Frequently Asked Questions
What were the Istanbul Commitments?
The Istanbul Commitments were agreements signed during the 1999 OSCE Istanbul summit where Russia agreed to withdraw forces from Moldova, reduce its military presence in Georgia, and lower equipment levels in the flank regions to comply with the Adapted CFE Treaty.
Why has NATO refused to ratify the adapted CFE treaty?
NATO members refuse ratification because Russia has not fully withdrawn its troops from Georgia and Moldova, specifically citing the continued existence of the Gudauta base in Abkhazia.
What is the status of Russian forces in Moldova?
Although Russia removed 58 trainloads of equipment and ammunition from Transdniestria, it has denied making a clear commitment to a full withdrawal since 2002, and no further withdrawals have occurred since 2004.
What is the significance of the Gudauta base?
The Gudauta base is located in Abkhazia, a breakaway region within Georgia's recognized borders. NATO views the failure to dismantle this base as an attempt to postpone the ratification of the CFE treaty.
What happened with the Russian bases in Batumi and Akhalkalaki?
Russia agreed to close these two bases and withdraw the stationed troops by the end of 2008, a move Russia claims fulfills its obligations toward Georgia.